Federal Emergency Management Agency

PUBLIC ASSISTANCE

DEBRIS OPERATIONS

JOB AID

FEMA 9580.1

For more information related to Debris

Management and Operations, please refer to the

Debris Management Guide, FEMA 325.

Report fraud, waste, and abuse to FEMA’s Office of the

Inspector General on the Hotline at 1-800-323-8603

Disaster recovery assistance is available without regard to race, color, national origin, sex, age, religion,

disability, or economic status. Anyone who believes

he/she has been discriminated against should contact

the FEMA Helpline at 1-800-525-0321.
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Table of Contents

Foreword ................................................................................v

Debris Management Terms .................................................vii

Acronyms ..............................................................................xi

Section A - Public Assistance Debris Management

Responsibilities.....................................................................1

Authority .............................................................................1

Federal Response Plan......................................................1

Operations Section.............................................................2

Public Assistance Group ....................................................2

Debris Management Organization and Responsibilities ....3

Emergency Response Team (ERT) Infrastructure Branch

Chief.............................................................................3

Public Assistance Officer (PAO).........................................4

Deputy PAO for Debris .......................................................4

Public Assistance Coordinator (PAC).................................5

Debris Advisor ....................................................................5

Debris Specialist.................................................................6

Disaster Field Office (DFO) Attorney .................................6

Public Information Officer...................................................6

Regional Environmental Officer .........................................7

FEMA Technical Assistance Contractors ...........................7

Debris Removal and Disposal Operations Plan ................7

Section B - Mission Assignments........................................9

General ...............................................................................9

Use of Mission Assignments ..............................................9

Development of Debris Mission Assignments .................10

Scope of Work..................................................................10

Monitoring Mission Assignments ...................................... 11

Advanced Contract Initiative ............................................ 11

Section C - Working with Applicants ................................13

Timing ...............................................................................13

Applicant Information Needs ............................................14
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Table of Contents

(Cont’d)

Section D - Debris Clearance, Removal and Disposal

Strategy.................................................................................17

Phase I: Emergency Debris Clearance Operations .........17

Phase II: Debris Removal and Disposal Operations .......17

Temporary Debris Storage and Reduction (TDSR)

Sites ...........................................................................20

Site Ownership ..........................................................20

Site Size.....................................................................20

Site Location ..............................................................20

Volume Reduction Methods .............................................21

Volume Reduction by Burning ...................................21

Volume Reduction by Grinding and Chipping ...........22

Volume Reduction by Recycling................................22

Section E - Public Assistance Program Debris Issues ...25

Estimating Debris Quantities ............................................25

General ......................................................................25

Reminders .................................................................26

Estimating Aids - Buildings ........................................26

Rules of Thumb .........................................................27

Debris Composition for Hurricanes ...........................28

Reduction Rates ........................................................28

Remote Sensing ........................................................29

Debris Estimating Models ..........................................29

Other Estimating Models ...........................................29

Eligibility of Curbside Pick-up...........................................30

Removal of Eligible Debris from Private Property ...........31

Homeowner’s Insurance Coverage for Debris Removal .33

Emergency Response Activities Related to Hazardous

Materials ....................................................................34

Types of Debris Removal and Disposal Contracts ..........34

Time and Material Contracts .....................................35

Unit Price Contract ....................................................37

Lump Sum Contract ..................................................37

Debris Removal and Disposal Contract Monitoring.........39

Applicant Monitoring Responsibilities ........................39

FEMA Monitoring Responsibilities .............................41
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Table of Contents

(Cont’d)

Monitoring Tips ..........................................................41

Reasonable Costs ............................................................43

Tipping Fees ..............................................................44

Section F - References........................................................47

Index ...................................................................................49

APPENDIX A....................................................................... A-1

APPENDIX B .......................................................................B-1

APPENDIX C- DEBRIS COORDINATING COMMITTEE ..C-1

APPENDIX D - PUBLIC ASSISTANCE PROGRAM

DEBRIS REMOVAL FACT SHEET FOR

LOCAL GOVERNMENTS...................................................D-1

APPENDIX E - SAMPLE RIGHT-OF-ENTRY PERMIT

(INCLUDES HOLD HARMLESS AND

INSURANCE CLAUSES) .................................................... E-1

APPENDIX F - DEBRIS CONTRACT INFORMATION

FOR APPLICANTS ............................................................. F-1
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Foreword

This job aid provides guidance on the pick-up, removal, and

disposal of eligible debris generated by hurricanes, tornadoes,

floods, earthquakes, wildfires, and other events that are

Presidentially declared disasters or emergencies. Public

Assistance Program staff may find this job aid useful when

working with applicants to manage debris removal and

disposal operations.

Questions regarding this job aid, or debris removal operations

in general, should be directed to:

Chief, Engineering Branch

Infrastructure Division

Response & Recovery Directorate

Federal Emergency Management Agency

500 C Street, SW

Washington, DC 20472

(202) 646-3684
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vii

Debris Management Terms

Burning – Reduction of woody debris by controlled burning.

Woody debris can be reduced in volume by approximately

95% through burning. Air curtain burners are recommended

because they can be operated in a manner to comply with

clean-air standards.

Chipping or Mulching - Reducing wood related material by

mechanical means into small pieces to be used as mulch or

fuel. Woody debris can be reduced in volume by

approximately 75%, based on data obtained during reduction

operations. The terms “chipping” and “mulching” are often

used interchangeably.

Debris - Scattered items and materials either broken,

destroyed, or displaced by a natural disaster. Example: trees,

construction and demolition material, personal property.

Debris Clearance - Clearing the major road arteries by

pushing debris to the roadside to accommodate emergency

traffic.

Debris Removal - Picking up debris and taking it to a

temporary storage site or permanent landfill.

Department of Public Works (DPW) - Department typically

responsible for clearing debris from the roads and rights-ofway.

Department of Solid Waste Management (SWM) -

Department typically responsible for managing and overseeing

the collection and disposal of garbage, trash, construction

debris, and disaster related debris.

Federal Response Plan – A plan that describes the

mechanism and structure by which the Federal government

mobilizes resources and conducts activities to address the

consequences of any major disaster or emergency that

overwhelms the capabilities of State and local governments.

Final Debris Disposal - Placing mixed debris and/or residue

from volume reduction operations into an approved landfill.
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Force Account Labor - In this context, State, tribal or local

government employees engaged in debris removal activities

within their own jurisdiction.

Garbage - Waste that is regularly picked up by the

Department of Solid Waste Management. Examples: food,

plastics, wrapping, papers.

Hazardous Waste - Material and products from institutional,

commercial, recreational, industrial and agricultural sources

that contain certain chemicals with one or more of the

following characteristics, as defined by the Environmental

Protection Agency: 1) Toxic, 2) Flammable, 3) Corrosive; and/

or 4) Reactive.

Household Hazardous Waste (HHW) - Used or leftover

contents of consumer products that contain chemicals with

one or more of the following characteristics, as defined by the

Environmental Protection Agency: 1) Toxic, 2) Flammable, 3)

Corrosive and/or 4) Reactive. Examples of household

hazardous waste include small quantities of normal household

cleaning and maintenance products, latex and oil based paint,

cleaning solvents, gasoline, oils, swimming pool chemicals,

pesticides, and propane gas cylinders.

Hot Spots - Illegal dumpsites that may pose health and safety

threats.

Monitoring - Actions taken to ensure that a contractor

complies with the contract scope of work.

Mutual Aid Agreement – In this context, a written

understanding between communities or between States

obligating assistance during a disaster or emergency. (See

Response and Recovery Directorate Policy Number 9523.6,

“Mutual Aid Agreements for Public Assistance”, dated August

17, 1999.

Recycling - The recovery and reuse of metals, soils, and

construction materials that may have a residual monetary

value.

Rights-of-Way - The portions of land over which facilities,

such as highways, railroads, or power lines are built. Includes
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land on both sides of the highway up to the private property

line.

Scale/Weigh Station - A scale used to weigh trucks as they

enter and leave a landfill. The difference in weight determines

the tonnage dumped and a tipping fee is charged accordingly.

Also may be used to determine the quantity of debris pickedup and hauled.

Sweeps - The number of times a contractor passes through a

community to collect all disaster-related debris from the rightsof-way. Usually limited to three passes through the community.

Temporary Debris Storage and Reduction (TDSR) Site - A

location where debris is temporarily stored until it is sorted,

processed, and reduced in volume and/or taken to a

permanent landfill.

Tipping Fee - A fee based on weight or volume of debris

dumped that is charged by landfills or other waste

management facilities to cover their operating and

maintenance costs. The fee also may include amounts to

cover the cost of closing the current facility and/or opening a

new facility.

Trash - Non-disaster related yard waste, white metals, or

household furnishings placed on the curbside for pickup by

local solid waste management personnel. Not synonymous

with garbage.

United States Army Corps of Engineers (USACE) - The

USACE designs and manages construction projects and buys,

manages, and disposes of land for the Army and Air Force.

The USACE may be used by FEMA when direct Federal

assistance, issued through a mission assignment, is needed.

Volume Reduction Operations - Any of several processes

used to reduce the volume of debris brought to a temporary

debris storage and reduction site. It includes chipping and

mulching of woody debris, shredding and baling of metals, air

curtain burning, etc.

White Metals - Household appliances, such as refrigerators,

freezers, stoves, washers, and dryers.
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Acronyms

C&D Construction and Demolition

DFO Disaster Field Office

DPAO Deputy Public Assistance Officer

DPW Department of Public Works

ERT Emergency Response Team

ESF#3 Emergency Support Function - Public Works and

Engineering

ESF#12 Emergency Support Function – Energy EST

Emergency Support Team

FCO Federal Coordinating Officer

FEMA Federal Emergency Management Agency

OFA Other Federal Agencies

OIG Office of Inspector General

MA Mission Assignment

PA Public Assistance

PAC Public Assistance Coordinator

PAO Public Assistance Officer

PDA Preliminary Damage Assessment

PIO Public Information Officer

PW Project Worksheet

ROC Regional Operation Center

SBA Small Business Administration

SWM Solid Waste Management

TAC Technical Assistance Contractor

TDSR Temporary Debris Storage and Reduction

USACE United States Army Corps of Engineers

USEPA United States Environmental Protection Agency
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Section A

PUBLIC ASSISTANCE DEBRIS MANAGEMENT

RESPONSIBILITIES

Authority

The Robert T. Stafford Disaster Relief and Emergency

Assistance Act (Public Law 93-288, as amended) provides the

authority for the Federal government to respond to disasters

and emergencies in order to provide assistance to save lives

and protect public health, safety, and property.

Federal Response Plan

The Federal Response Plan is designed to address the

consequences of any disaster or emergency situation in which

there is a need for Federal response assistance under the

authority of the Stafford Act. The plan identifies actions that

participating Federal departments and agencies will take in the

overall Federal response, in coordination with the affected

State. It is applicable to natural disasters such as earthquakes,

hurricanes, typhoons, tornadoes, wildfires, and volcanic

eruptions. These events can heavily damage buildings,

structures, and other components of the basic infrastructure.

Combined with downed or damaged trees and shrubs, the

resulting debris may overwhelm State and local resources.

When a full Emergency Response Team (ERT) is activated

under the Federal Response Plan, it consists of the following

organizational elements:

• Federal Coordinating Officer (FCO) Support Staff

• Operations Section

• Information and Planning Section

• Logistics Section

• Administration Section
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Operations Section

In a full ERT, the Operations Section will have an Infrastructure

Support Branch with the following groups:

• ESF#3 Public Works & Engineering Group: Responsible

for supporting the restoration of essential public services

and facilities.

• ESF#12 Energy Group: Responsible for providing

assistance in restoring power systems and fuel supplies.

• Public Assistance Group: Responsible for administering

grant assistance to State and local governments and

certain private nonprofit organizations for debris removal,

emergency protective measures, and repair, restoration,

and replacement of damaged facilities.

Public Assistance Group

The Infrastructure Branch Chief normally directs the Public

Assistance Group. In some cases, this person may also be

assigned as the Public Assistance Officer (PAO). If debris is a

significant component of the disaster, then a Deputy PAO for

Debris will be assigned and assume many of the following

debris related responsibilities:

• Advising the Operations Section Chief and FCO on

potential debris issues.

• Coordinating the efforts of restoring essential public

services with the State PAO.

• Coordinating requests for Debris Mission Assignments that

may be issued to

ESF#3 Public Works & Engineering

ESF#12 Energy

ESF#10 Hazardous Materials

• Coordinating Preliminary Damage Assessment (PDA)

operations.
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• Identifying major debris issues and applicants with

potential debris problems based on the PDA.

• Administering applicable portions of the Public Assistance

Grant Program.

• Identifying and obtaining resources for managing debris

operations. Such resources may include a Debris Advisor

and an appropriate number of Debris Specialists.

• Providing Public Assistance Coordinators (PACs) with

guidance and direction on problems, procedures, and

policies pertaining to debris operations.

Debris Management Organization and

Responsibilities

Many of the debris issues identified in the Debris Removal and

Disposal Operations Plan (See Appendix A) developed during

the Response Phase may not be resolved until the Recovery

Phase has begun. Consequently, the Public Assistance staff

that is assigned to execute the Public Assistance Program

must be knowledgeable of the debris issues defined in the

Debris Removal and Disposal Plan, and their current status as

defined by the Debris Removal and Disposal Status Report

(See Appendix B). A recommended organization for managing

and coordinating debris operations is shown in the

organization chart on the following page. A brief discussion of

the roles and responsibilities of each position shown, as well

as those of some of the supporting staff follow the chart. A

more detailed overview of the Debris Coordinating Committee

is shown in Appendix C.

Emergency Response Team (ERT) Infrastructure

Branch Chief

• Coordinates the efforts of restoring essential public

services.

• Administers Public Assistance Programs.
4

• Reviews Debris Mission Assignments issued by the EST to

the Public Works and Engineering Group and coordinates

with the Public Assistance Group.

• Requests that Debris Specialists be assigned to assist in

PDA operations as necessary.

Public Assistance Officer (PAO)

• Identifies major debris issues and applicants with potential

debris problems based on the PDA.

• Identifies and, as required, obtains resources for managing

debris operations (Deputy PAO for Debris, Debris Advisor

and an appropriate number of Debris Specialists).

• Provides the Deputy PAO for Debris with guidance and

direction on problems, procedures, and policies pertaining

to debris operations.

• Advises the Infrastructure Branch Chief and FCO on

potential debris issues.

Deputy PAO for Debris

• Coordinates all debris-related activities and operations.

• Organizes and chairs the Debris Coordinating Committee.

• Identifies major debris issues and applicants with potential

debris problems based on coordination with the State PAO.
5

• Coordinates all debris mission assignments with ESF#3.

• Supervises the Debris Advisor and Debris Specialists.

• Provides PACs with guidance and direction on problems,

procedures, and policies pertaining to debris operations.

• Advises the PAO on potential debris issues.

• Coordinates with DFO Attorney to review proposed debris

related contracts provided by local applicants.

• Arranges for technical assistance in contract preparation or

contract monitoring if requested.

Public Assistance Coordinator (PAC)

• Identifies debris issues during the kickoff meeting with the

applicant.

• Educates applicants on the availability of PA funding for

debris operations.

• Works with the Debris Advisor and Specialists to resolve

potential program issues with respect to debris.

• Assesses the need for obtaining resources to monitor

debris contractor’s activities with the Debris Advisor.

• Works with applicants early in the process to encourage a

smooth transition for debris operations from Federal Direct

Mission Assignments to local responsibility.

• Utilizes the Debris Advisor to conduct technical reviews

of Category A-Project Worksheets as needed, especially

those that are large or complex.

• Informs the DPAO for Debris of potential debris issues.

Debris Advisor

• Serves as the DPAO’s debris expert and advisor.

• Attends ESF#3 and USACE debris coordination meetings

as the DPAO’s representative.
6

• Works closely with ESF#3 and the USACE on all Debris

Mission Assignments. Ensures that copies of USACE

debris situation reports and copies of all debris contracts

are obtained for the files.

• Attends Kickoff Meetings with applicants who have

significant debris problems.

• Continues to meet with applicants to address debris

removal issues as operations progress.

• Coordinates requirements for Contract Monitors with the

PACs.

• Conducts periodic visits to all temporary debris storage

and reduction sites and landfills.

• Conducts technical reviews of large or complex Category

A-Project Worksheets.

Debris Specialist

• Participates in PDA operations.

• Works with applicants to resolve debris operations issues.

• Performs debris contract monitoring functions.

• Assists applicants and FEMA Project Officers with the

development of Category A-Project Worksheets.

Disaster Field Office (DFO) Attorney

• Reviews proposed and active debris contracts.

• Reviews right-of-entry permits and hold harmless

agreements.

• Advises the PA staff on such issues as land acquisition,

condemnations, insurance requirements, potential liability,

duplication of benefits, environmental and historic

preservation.

Public Information Officer

• Provides timely news releases regarding debris removal.
7

• Coordinates with the PAO to address debris related

concerns of local news media.

• Ensures correct information is provided to the media

during press conferences.

Regional Environmental Officer

• Provides guidance on environmental considerations for

debris operations.

• Assists in determining environmental considerations for

opening and closing temporary debris storage and

reduction sites.

FEMA Technical Assistance Contractors

The FEMA Technical Assistance Contractors (TAC) can

provide trained Debris Advisors and Debris Specialists as

requested.

The PAO or Resource Coordinator should specifically define

the technical specialty, scope of work, and period of

performance required of the TAC. Requests should be

forwarded to the Infrastructure Division Project Office at FEMA

Headquarters.

Debris Removal and Disposal Operations Plan

IIf debris is a significant component of a disaster, it usually will

be necessary to provide continuing and timely information on

debris operations to the Public Assistance Officer. This

process can be more easily managed if, under the direction of

the DPAO for Debris, development of a Debris Removal and

Disposal Operations Plan begins immediately after an event.

This document will provide a framework for coordinating all

debris removal and disposal issues. In several recent

disasters, such a plan was found to be extremely useful. An

outline is shown in Appendix A. Basic information required for

this plan includes:

1. The quantity, type and location of debris.

2. Management responsibility (local governments, state
8

agencies, US Army Corps of Engineers, other Federal

agencies.

A debris-coordinating group (normally the Debris Coordinating

Committee) that includes local, State and Federal personnel is

assembled to identify possible disaster related debris removal

and disposal issues. The issues identified provide the

framework for the plan. Key personnel are then assigned the

responsibility of reviewing specific issues and providing

recommendations or solutions. These are then discussed at

the subsequent coordination meeting, and resulting actions

recorded in the Daily Debris Removal and Disposal Operation

Status Report (See Appendix B).
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Section B

MISSION ASSIGNMENTS

General

When an impacted State and local governments do not have

the capability to perform or contract for debris removal and

disposal, Direct Federal Assistance may be requested from

FEMA. If this request is approved, FEMA may issue a Mission

Assignment.

A Mission Assignment is a work order issued by FEMA to

another Federal agency directing completion of a specific

assignment in anticipation of, or response to, a Presidential

declaration of a major disaster or emergency.

Debris removal and disposal Mission Assignments are

generally assigned to the USACE through ESF#3. They may

also be issued to provide Technical Assistance when a State or

local jurisdiction lacks the knowledge and expertise to

accomplish an identified task.

Direct Federal Assistance work is limited to Category A: Debris

Removal and Category B: Emergency Protective Measures,

under Sections 402, 403 and 407 of the Stafford Act.

Direct Federal Assistance is subject to the cost sharing

provisions applicable to the disaster, as specified in the FEMA/

State Agreement.

Use of Mission Assignments

Debris related Mission Assignments (MAs) could be issued to:

• Remove debris from critical roadways and facilities.

• Remove debris from curbsides and haul it to either

temporary or permanent disposal sites.

• Remove debris from eligible facilities and haul it to either

temporary or permanent disposal sites.

• Operate temporary debris storage and reduction sites.
10

• Monitor debris contractor’s activities.

• Demolish and/or remove disaster-damaged structures and

facilities in accordance with FEMA regulations and policies.

• Provide technical assistance to FEMA, the State or

applicants.

Development of Debris Mission Assignments

Mission Assignments for Direct Federal Assistance are issued

when the required disaster-related efforts exceed State and

local resources, and are requested by the State.

Initial Debris MAs of limited scope may be issued by the

Emergency Support Team (EST) or Regional Operations

Center early in a disaster using pre-scripted scopes of work.

Pre-scripted MAs may be issued to initiate debris related

operations; however, the scope should be reviewed by the

DPAO for Debris before final approval. Task orders will be

issued against the pre-scripted MA after it is approved. Each

task order should be carefully reviewed to ensure it is clear,

concise and accurate.

The Infrastructure Branch Chief, along with the PAO, should

coordinate with the USACE to further define the Debris MA

scope of work based on information received from the PDA

and the State. The DPAO for Debris should assess immediate

needs, but plan for 30-, 60-, and 90-day requirements.

Scope of Work

When developing a Debris MA, or a Task Order under a prescripted MA:

• The scope of work should define the work to be done, but

not the means.

• The scope of work should identify specific geographic

locations or easily definable areas, as well as estimated

types and volumes of debris.

• The scopes of work should be modified or new ones

developed if the situation changes.
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• Be sure to have a good understanding of the specific

debris operations required for a particular disaster. Not all

disposal operations require a TDSR, and not all debris

should go to a TDSR; some can go directly to a disposal

site.

Monitoring Mission Assignments

Contract monitoring is the key to successful debris operations.

In a Debris MA, the USACE achieves this by:

• Assigning personnel to work sites to monitor contractor’s

performance.

• Insuring that contract monitoring personnel are trained and

carefully briefed.

• Sending progress reports through the ESF#3 to the DPAO

for Debris on a periodic basis. The frequency of the reports

will be established by the DPAO for Debris.

The FEMA Project Monitor (normally the DPAO for Debris) is

assigned when the MA is implemented. This individual should

make periodic visits to all job sites to monitor overall

performance.

Advanced Contract Initiative

Under an Advanced Contract Initiative (ACI), the USACE has

developed contracts for immediate implementation. These

contracts are with pre-selected contractors, and each covers

potential operations in several states. The operations that can

be conducted under this concept are extremely flexible.

There are certain aspects of the ACI with which FEMA

personnel should be familiar:

1. The intent to award these contracts was announced on a

nation-wide basis, and all interested qualified firms had an

opportunity to respond to the announcement.

2. If the USACE is given a debris mission assignment, the

pre-selected contractor must be used for a minimum of

$100,000 of work.
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3. The USACE may award contracts to local contractors for

debris operations; however, there still is a requirement for

the ACI contractor to be involved in a minimum of

$100,000 of work (or receive payment for that amount).

4. The USACE may use the ACI contractor to pick-up, haul,

and dump debris; to manage a Temporary Debris Storage

and Reduction (TDSR) site; to haul from the TDSR site to

final disposal; or to be involved in any combination of these

operations.

5. The USACE can divide a disaster area into sectors or subareas in which the ACI contractor will work. The sectors

may be counties, cities, towns or other political subdivisions. This means that the ACI contractor can be

working for one applicant, while one adjoining applicant

may be using force account labor and equipment, and

another adjoining applicant may be using a local

contractor.

If there are any questions or concerns regarding the ACI, the

PAO or DPAO for Debris should discuss them with an ESF #3

staff member, a USACE representative, or FEMA

Headquarters.
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Section C

WORKING WITH APPLICANTS

Timing

To minimize potential problems with debris operations, there

are two elements that must be addressed in a timely manner.

The first is providing potential applicants (including the State)

information on possible debris issues in a timely manner. The

second is timely deployment of trained debris staff. In the first

element, both summary and detailed information should be

provided to the applicants:

• Before the disaster

• During the PDA

• At the Applicant’s Briefing

• At the Kickoff Meeting

• During coordination meetings with the PAC, the Debris

Advisor, and the Debris Specialist

It is important that as much information as possible be

provided before a disaster occurs. At every opportunity, FEMA

staff should present information on debris operations so those

applicants will be better informed when a disaster occurs.

Waiting until Applicants’ Briefings or Kickoff Meetings to

initially discuss eligibility and contracts is too late.

The need for timely deployment of trained debris staff cannot

be overemphasized. A rapid assessment of the general

magnitude of debris should be based on the nature and extent

of the disaster. If debris is, or may be, a significant component

of the disaster, key debris staff should be alerted and deployed

as early as possible.

• If the Regional Operations Center (ROC) is activated, a

staff member familiar with debris-related activities should

work through the ROC, with the affected State, to begin

providing information to potential applicants. This should

be a very high priority. Ideally, the Region and the State
14

would have a plan in effect to provide such information or

reinforce information already provided.

• A Debris Specialist should be assigned as part of any PDA

team. Potential applicants should be provided a copy of the

Public Assistance Program Debris Removal Fact Sheet

for Local Governments (See Appendix D).

• The DPAO for Debris should be part of the initially

deployed unit, and should deploy sufficient staff to

immediately begin meeting with applicants and monitoring

debris operations.

• Correct and timely information, along with timely

deployment of trained debris specialists, will minimize

problems in debris operations.

Applicant Information Needs

Although the applicant already should have been provided

information on debris operations, the Kickoff meeting is an

excellent opportunity to reinforce that information. If the

applicant has not been provided debris-related information, the

PAC should make sure there is a good understanding of the

subject. The PAC can discuss:

• PA Program eligibility criteria. In particular, debris removal

from private property should be thoroughly covered.

• The need for, and an explanation of, acceptable

 documentation.

• Types of acceptable debris contracts. The applicant

should not “automatically” accept contractor provided

contracts. (See Appendix F Debris Contract Information)

• Reasonable costs.

• Alternatives for debris reduction and disposal.

• Process for reimbursement.

• Existing or anticipated Mission Assignments for debris

removal and disposal.
15

• Interaction with USACE (if applicable).

• Procedures to request technical assistance from FEMA.

• Procedures to monitor applicant’s contractors.
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Section D

DEBRIS CLEARANCE, REMOVAL AND DISPOSAL

STRATEGY

Phase I: Emergency Debris Clearance Operations

The local Department of Public Works (DPW) is usually (but

not always) responsible for Phase I debris clearance activities

because it has the necessary personnel, equipment and

contracting experience suitable for rapid clearing of debris

from critical roadways and facilities.

The DPW, or other responsible entity, should be staffed to

identify and control the movement of debris from all

designated emergency roads and facilities using all available

resources. This may include force account labor and

equipment, military personnel, mutual aid providers and local

contractors. Roadway debris should be quickly moved to the

side of the road to provide access into devastated areas to

allow for:

• Movement of emergency vehicles.

• Law enforcement.

• Resumption of critical services.

• Damage assessment of critical public facilities and utilities.

Requirements for government services increase dramatically

following a major natural disaster. After emergency access has

been provided to hospitals, police and fire stations, the next

priority normally is to open access to other critical community

facilities, such as schools, municipal buildings, water treatment

plants, wastewater treatment plants, power generation units,

airports and seaports.

Phase II: Debris Removal and Disposal Operations

The local Department of Solid Waste Management (SWM) is

usually (but not always) responsible for coordinating all debris

removal and disposal activities to include normal garbage
18

pickup. Debris removal and disposal operations should be

closely coordinated between the DPW and SWM to ensure a

smooth transition.

The Department of SWM (or responsible entity) should be

prepared to remove and dispose of the following types of

debris:

• Tree blow-down and broken limbs.

• Yard trash such as outdoor furniture and trashcans.

• Building debris, such as roofs, sheds, block walls and

chimneys.

• Personal property, such as clothing, appliances, and

furniture. (Removal of boats, cars, trucks, and trailers are

the responsibility of the owner and are not normally

considered as debris.)

• Silt from flooding and earth and rocks from landslides.

Removal of utility poles, power, telephone and cable television

lines, transformers and other electrical devices is the

responsibility of the private/public owner/operator.

The following are critical steps necessary to clear, remove and

dispose of debris following a natural disaster.

Step 1. Preliminary Damage Assessment

Conduct a joint PDA to:

• Develop initial debris stimates

• Identify critical facilities

• Prioritize key routes

Step 2. Phase I - Debris Clearance Operations

Initiate debris clearing operations using:

• Force account personnel and equipment

• Mutual aid providers
19

• National Guard

• Volunteers

Supplement debris clearing operations using:

• Rental equipment

• Local contractors

Determine Type of Contracts to Use:

• Time and Material Contracts can be used during this

period of time, but FEMA policy limits reimbursement to

work done during the first 70 hours of actual work.

Lump Sum contracts should not be used during Phase I.

Step 3. Phase II -Debris Removal and Disposal Operations

Decide where to dispose of the debris.

• Should Temporary Debris Storage and Reduction (TDSR)

sites be used?

• Should privately owned or publicly owned local landfills be

used?

Decide if volume reduction or other processing is required.

• Should debris be burned, and how?

• Should debris be ground into mulch?

• Should debris be recycled?

Determine Type of Contracts to Use:

• Unit Price. Use when quantities cannot be accurately

quantified.

• Lump Sum. Use only when quantities can be accurately

quantified.

• Contractor’s debris estimates should not be used without

independent verification of estimated quantities.
20

Initiate Debris Removal and Disposal Operations Using:

• Force Account Personnel and Equipment

• Local Contractors

• Regional Contractors

Contractors’ debris estimates should not be used without

independent verification of estimated quantities.

Temporary Debris Storage and Reduction (TDSR)

Sites

The following questions will help to identify and prioritize

appropriate TDSR sites based on local requirements and

conditions.

Site Ownership

• Are public lands available?

• Will public lands be provided at no cost?

• Are private land lease terms long enough?

• Are private land lease terms automatically renewable?

• What are the specific restoration requirements of the

private land lease or usage arrangement? Improvements

to the pre-disaster conditions are not eligible.

Site Size

• Is the site large enough to accommodate the planned

debris storage and/or reduction methods? For estimating

purposes, use 100 acres per one million cubic yards of

debris.

• Will the site configuration allow for an efficient layout?

Site Location

• Does the site have good ingress/egress?

• Does the site have good transportation arteries?
21

• Does the site have open, flat topography?

• Does the site have wetlands? Coordinate with the Region

Environmental Officer.

• Does the site have or will it affect public water supplies,

including well fields and surface waters?

• Does the site have threatened and endangered animal and

plant species?

• Does the site have threatened and endangered species’

critical habitats?

• Does the site have rare ecosystems?

• Does the site have historic sites or archaeological sites?

• Does the site have sensitive surrounding land use, such as

residential, school and church?

• Has there been coordination between FEMA, the State,

and EPA?

Volume Reduction Methods

Depending upon the type of debris generated by the disaster,

the original volume may be significantly reduced by using one,

or a combination of, several methods. Each method should be

considered in developing a volume reduction strategy.

Volume Reduction by Burning

Burning woody debris reduces the volume by approximately

95%, leaving only an ash residue for disposal; however, be

sure to check all applicable State and local regulations. The

following are recommended methods to reduce clean woody

debris by burning:

Controlled Open Air Burning - Controlled open-air burning is

a cost-effective method for reducing clean, woody debris in

rural areas. Controlled open-air burning should be terminated

if mixed debris enters the waste stream.
22

Air Curtain Pit Burning - The air curtain burning method uses

a pit constructed by either digging below grade or building

above grade (if a high water table exists) and a blower unit.

The blower unit and pit comprise an engineered system that

must be precisely configured to function properly.

Portable Air Curtain Burner - Portable air curtain burners are

the most efficient systems available because the premanufactured pit is engineered to precise dimensions to

complement the blower system. The pre-manufactured pit

requires little or no maintenance as compared to earth or

limestone constructed pits, which are susceptible to erosion.

Volume Reduction by Grinding and Chipping

Hurricanes and ice storms produce large quantities of clean

woody debris. Large-scale grinding and chipping operations

should be considered if burning is banned. Chipping and

grinding generally reduces the volume on a 4-to-1 ratio (4

cubic yards of woody debris is reduced to 1 cubic yard of

mulch) or by 75%. Because the type and mix of woody debris

may cause this ration to vary, it may be appropriate to make

test runs early in the process. Make sure all appropriate

parties are involved in the test, trucks are accurately measured

and properly loaded, and both the pre-reduction and postreduction volumes are carefully measured. For chipping and

grinding to be most effective, the volume remaining should

have some benefit, such as mulch for agricultural purposes,

use as daily cover in a land-fill, or as fuel for use in industria

heating or in a cogeneration plant.

Volume Reduction by Recycling

After many disasters, especially hurricanes and earthquakes,

volume reduction may be accomplished by large-scale

recycling operations. Recycling should be considered early in

the debris operation, because it may provide an opportunity to

reduce the overall cost of the operation. There should be

coordination between FEMA, the State and EPA when

recycling is being considered.
23

The following materials are candidates for recycling:

Metals - Hurricanes and tornadoes can cause extensive

damage to mobile homes, sun-porches, metal roofing material,

and green houses. Both non-ferrous and ferrous metals are

suitable for recycling. Metal maulers and shredders can be

used to shred trailer frames, trailer parts, appliances and other

metal items. Ferrous and non-ferrous metals are separated

using an electromagnet, and then sold to metal recycling firms.

Soil - The equipment used in cleanup operations may pick up

large amounts of soil. Most of the soil can be recovered if the

material is put through a screen or shaker system. The dirt can

be stored on-site, used as landfill cover material or sold to the

agricultural community. Care must be exercised to ensure the

soil is tested before use.

Construction and Demolition Materials - Construction and

demolition waste material may be generated directly by the

disaster or in the demolition of disaster-damaged structures

and facilities. This waste stream includes concrete, asphalt,

gypsum, wood waste, glass, bricks, and roofing tile. Much of

this material can be reused or recycled.

Wood - Clean, woody debris can be ground, chipped,

shredded, or removed by timber operators or pulpwood

cutters.
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25

Section E

PUBLIC ASSISTANCE PROGRAM DEBRIS ISSUES

Estimating Debris Quantities

General: Initial quantity estimates are difficult to make, due to

a number of factors: the type, magnitude, and geographical

location of the disaster; geographical extent of the debris; the

types and mix of debris, and the sometimes difficulties in

gaining access to the affected areas. It is important, however,

to make as accurate an estimate as possible, and refine that

estimate as work continues.

Become familiar with the general results of various types of

disasters. Hurricanes and tornadoes can produce large

quantities of yard waste and construction materials scattered

over a large area. Floods create large amounts of debris that

may be buried in silt. Ice storms and snowstorms create large

amounts of woody debris from broken limbs and branches.

Many of the large broken limbs remain attached to the tree

trunk and must be removed by professional tree trimmers.

Ensure that necessary equipment is available, including:

• Digital (preferred) or Polaroid camera

• 100 foot tape or roll-off wheel

• Calculator, notepad, sketchpad

• Maps of area

• Aerial photographs (preferably before and after the

disaster)

• Dedicated vehicle and mobile communications

Debris estimating can be expedited by dividing the community

into sectors based on any of the following.

• Type of debris: woody, mixed or construction material

• Location of debris: residential, commercial or industrial

• Land use: rural or urban
26

Reminders: The following reminders may be of assistance

when performing debris estimates:

• Look beyond the curb into side and backyards and at the

condition of the homes. Most of the debris in these areas

will eventually move to the curb.

• Wet storms will produce more personal property

(household furnishings, clothing, rugs, etc.) debris if roofs

are blown away.

• Look for hanging debris such as broken limbs after an ice

storm.

• Flood-deposited sediment may be compacted in place.

Volume may increase as debris is picked up and moved.

• Using aerial photographs in combination with ground

measurements will help determine if there are any voids in

the middle of large debris piles.

• Treat debris piles as a cube, not a cone, when performing

estimates.

Estimating Aids – Buildings: The following information will

assist you in determining the amount of debris from destroyed

buildings and mobile homes:

• One Story House Formula:

L’xW’x 8’= ___cubic yards x 0.33 = ___cubic yards of debris

27’ per cy

(The 0.33 factor accounts for the “air space” in the house)

• The table at the top of the next page can be used to

estimate debris quantities for a totally destroyed typical

home. A vegetative debris multiplier is also included.

• Amount of personal property (as debris) from average

flooded residence without a basement: 25-30 cy.

• Amount of personal property (as debris) from average

flooded residence with a basement: 45-50 cy
27

• Single wide mobile home = 290 cy of debris

• Double wide mobile home = 415 cy of debris

Rules of Thumb:

• 15 trees 8 inches in diameter = 40 cy (average)

• Root system (8’-10’ diameter) = Requires one flat bed

trailer to move.

• To convert cubic yards of Construction & Demolition (C&D)

debris to tons, divide by 2.

• To convert tons of C&D debris to cubic yards, multiply by 2.

• To convert cubic yards of woody debris to tons, divide by

4*.

• To convert tons of woody debris to cubic yards, multiply by

4*.

*These factors to convert woody debris from cubic yards to

tons, and vice versa, is considered a good average for mixed

Typical

House

(square feet)

Vegetative Cover Multiplier (Yard Waste)

None Light (1.1) Medium (1.3) Heavy (1.5)

1000 SF. 98 cy 107 cy 127 cy 147 cy

1200 SF. 118 cy 129 cy 153 cy 177 cy

1400 SF 137 cy 150 cy 178 cy 205 cy

1600 SF. 155 cy 170 cy 201 cy 232 cy

1800 SF. 175 cy 192 cy 228 cy 263 cy

2000 SF. 195 cy 215 cy 254 cy 293 cy

2200 SF. 215 cy 237 cy 280 cy 323 cy

2400 SF. 235 cy 259 cy 306 cy 353 cy

2600 SF. 255 cy 280 cy 332 cy 383 cy
28

debris, developed by the US Army Corps of Engineers. If there

is any issue with these conversion factors, it is best to test

several truckloads. The testing should be done with all

affected parties present. Make sure the trucks are measured,

well loaded, and contain woody debris typical of that being

removed.

Debris Composition for Hurricanes: As a general statement,

hurricanes are the biggest debris generators of all disasters.

For planning purposes, it is sometimes useful to have an

estimate of the composition of the debris expected from a

hurricane. There is no exact composition data; the mix from

Hurricane Andrew in Florida was generally 30% clean, woody

debris and 70% construction and demolition debris. After

Hurricane Fran in North Carolina, the mix was reversed –

clean woody debris was 70%. Look closely at the areas

impacted by the hurricane before projecting the mix. One type

of debris that has a fairly consistent composition is mixed

construction and demolition debris. A good average for that

mix is:

• 42% burnable, but requires sorting (Check before burning,

there may be prohibitions against burning construction

debris).

 • 5% soil.

• 15% metals.

• 38% landfilled.

Reduction Rates:

• Burning: 95% reduction.

• Chipping and grinding: 75% reduction (average). This

percentage may vary with the types of wood being

chipped. It is best to carefully measure several piles of

typical woody debris before they are chipped, then

immediately thereafter, measure the amount of mulch

generated. Palm trees normally are not chipped because

of their fibrous trunks and the high content of silicates that

are carried up the truck during intake of moisture.
29

• Tub-grinders have production rates ranging from 160 to

340 cubic yards per hour for brush and yard waste. Check

production rates for specific equipment being used. Do not

use Grinder Production Logs; they tend to over quantify

production because they may apply engine hours, use an

“ideal” rate of production; lack personnel to monitor

equipment usage, have changes in conditions of debris,

etc. Verify by monitoring operations.

Remote Sensing: The use of remote sensing information

(aerial photographs, satellite data, etc.), either alone or in

combination with field surveys, may be of significant use in

estimating the amount, mix, and extent of debris.

Geographical Information Systems (GIS) maps should be

considered early. Depending upon the area, it is usually

possible to quickly obtain GIS maps of landfills, Superfund

sites, transportation routes, etc. As data on debris is obtained,

considered plotting data on GIS maps. Coordinate early with

ESF #5, Information and Planning.

Debris Estimating Models: U.S. Army Corps of Engineers

(USACE): The U.S. Army Corps of Engineers Emergency

Management staff developed a modeling methodology

designed to forecast potential amounts of hurricanegenerated debris. This model was initially based on actual data

from Hurricanes Frederic, Hugo and Andrew, has a predicted

accuracy of plus/minus 30 percent. The USACE has a

continuing on- going effort to improve this model, and

information may be available through ESF #3. More

information on this model can be found in Debris Management

Guide, FEMA Publication 325.

Other Estimating Models: Consultants, state, and local

governmental entities currently are working on developing or

implementing debris estimating models. Before using the

output of such models, review the procedure being used, the

amount and accuracy of the input data, and the expected

accuracy of the output. Assess the advantages and limitations

of the model, and do not use any estimating model as a basis

for payment, but rather as a basis for planning.
30

Eligibility of Curbside Pick-up

Debris may continue to accumulate as residents bring debris

from their properties to public rights-of-way. Typically, this

occurs in three stages:

Stage 1: Woody debris and yard waste moved to right-ofway.

Stage 2: Household waste, such as damaged personal

goods, moved to right-of-way.

Stage 3: Construction and demolition materials removed by

the homeowner prior to the receipt of insurance

and individual assistance payments.

Residents should not mix garbage with debris. Debris

deposited at the curbside must be disaster-related to be

eligible for pickup and disposal by the applicant. Applicants

should resume normal garbage pick-up schedules as soon as

possible.

Construction and demolition materials from minor or major

repairs or reconstruction by contractors should not be

deposited at the curbside. Contractors should remove and

deposit the debris at approved landfills.

Insurance proceeds usually cover the cost for demolition

debris removal from private property. Remember, only

disaster-related debris removal costs not covered by insurance

are eligible for reimbursement. Watch for non-disaster related

materials (bagged grass clippings, household garbage,

automobile parts).

When it becomes apparent that the debris being brought to

the curb is not disaster-related, or is reconstruction debris, the

PAO should negotiate with State counterpart to set a realistic

deadline and make sure the applicants have advance notice.

For example, it is unrealistic to impose a deadline that takes

effect 48 hours later. For large events, it is unrealistic to set

deadlines immediately following the disaster. However,

discussions with the State on the need to establish deadlines

should begin early.
31

Remember, the time extension authority given to the State

applies only to disaster-related debris. That authority does not

apply to curbside pick-up of non-disaster debris, or to

reconstruction debris.

Removal of Eligible Debris from Private Property

A discussion of eligibility for removal of debris from private

property is contained in the Debris Management Guide, FEMA

Publication 325; however, issues regarding such removal are

common. In particular, problems may arise regarding the

definitions of “public health and safety” and “economic

recovery” related to debris on private property. Removal of

debris from private property is primarily the responsibility of the

individual property owner, aided by insurance settlements or

volunteer organizations.

• Ensure that the term “economic recovery of the affected

areas” is not being misapplied. Use of this criterion is

normally restricted to the removal of disaster-related debris

from large commercial areas to expedite restoration of the

economic viability of the affected community.

• Ensure that all applicants are aware that only FEMA

makes eligibility determinations regarding removal of

debris from private property.

• Ensure that all applicants are aware of the limitations of

debris removal from private property early in the disaster.

• If FEMA determines that debris is so widespread that

removal from private property is appropriate, ensure that

the eligible applicant is aware of the requirement to comply

with specific requirements before removal (right-of-entry,

release from liability, insurance, etc.).

• Before paying for removing the debris from private

property, ensure that the eligible applicant understands the

requirement to collect any insurance proceeds that covers

the debris removal. These proceeds must be reported to

FEMA, and that amount deobligated from the appropriate

PW. (See Appendix E for a sample document that is a
32

combination Right-of-Entry Permit, Hold Harmless

Release, and Insurance Reimbursement Agreement.)

• Ensure that the determination that “a public health and

safety issue exists” is not based on building codes.

Generally, the determination would be based on

ordinances related to condemnation. Additionally, most

such ordinances require that the applicant place a lien on

the property for recoupment of demolition and debris

removal costs. If so, that amount should be treated similar

to insurance proceeds, and deobligated.

• Ensure that there is a clear understanding that a public

health and safety hazard must exist for the removal of the

debris to be eligible. Again, the final determination for the

eligibility of debris removal from private property is a FEMA

responsibility.

• Demolition of a structure is not always the most costeffective health and safety alternative. For “attractive

nuisances,” where structural integrity has not been

compromised, cleaning and securing the facility may be

the best alternative.

• Concrete slabs or foundations-on-grade do not present a

health or safety hazard to the general public except in very

unusual circumstances, such as erosion under a concrete

slab on a hillside.

• Broken slabs, or slabs incapable of supporting a new

structure, do not constitute a public health or safety

hazard. They are more appropriately part of the

reconstruction of the facility, and concrete slabs that are

removed for reconstruction purposes are not eligible for

removal as disaster-related debris, even when brought to

the curbside

• The cost of removing substantially damaged structures, as

well as associated slabs, driveways, fencing, garages,

sheds, and similar appurtenances, are eligible when the

property is part of a Section 404 Hazard Mitigation buyout

and relocation project. Review the Policy on Demolition of

Private and Public Facilities, November 9, 1999.
33

Homeowner’s Insurance Coverage for Debris

Removal

Essentially all general homeowner’s insurance policies contain

a provision for the pick-up of debris resulting from damages to

a facility (and any required demolition) covered by that policy.

That usually includes structures, fences, playground

equipment, etc., but removal of vegetative debris. Check the

insurance policy to determine whether or not it covers

vegetative debris. If not covered by insurance, that does not

mean removal of vegetative debris is eligible for Federal

funding. As previously stated, it is primarily the responsibility of

the property owner. The amount of coverage usually is a

percentage of the damages, commonly 10%-15%, but reports

indicate it can be as high as 25%. That means that if a

$100,000 residence is completely destroyed, or is destroyed to

the point that demolition is required, the homeowner may

receive $10,000 to $15,000 for debris removal. It should be

made clear to an applicant that if there is a request for FEMA

to remove the debris from private property, the responsibility

for collecting the insurance rests with that applicant. The

collection of insurance proceeds is in accordance with Federal

law prohibiting Duplication of Benefits (Section 312 of the

Stafford Act). Remember, insurance is a State-regulated

industry and policy terms and requirements may be governed

by State-law.

If there are questions regarding individual homeowner’s

insurance, check with FEMA Human Services. If a homeowner

has applied for individual assistance, and indicated insurance

coverage on the application, there is a potential for duplication

of benefits.

Verify that the right-of-entry and release from liability

document also requires the homeowner to agree to forward

insurance proceeds for debris removal to the applicant (see

Appendix E for recommended wording).

If SBA is involved, check to determine whether or not its loan

includes a provision for demolition and debris removal.
34

Debris Removal from Federal-Aid Roads, Streets, and

Highways

The Federal Highway Administration (FHWA) can initiate its

Emergency Relief Program after a disaster that covers the

following:

• When damages to Federal Aid systems exceed $500,000,

FHWA can provide up to $100 million per State, per event.

• Funding also can be provided to roads on Federal facilities.

• Emergency work (including debris removal) can begin

immediately after the event and does not require preapproval of FHWA.

• Funding goes to State DOT, not to local governments, so

check with the State DOT to determine if funding has been

provided.

• FHWA may provide funding for damage to Federal Aid

roads done as a result of emergency operations, which

includes debris hauling.

For further information, look at the Emergency Relief Manual

for Federal-Aid Roads, which can be downloaded from:

www.fhwa.dot.gov/reports/erm/index.htm

Emergency Response Activities Related to

Hazardous Materials

In the response phase of a disaster, there may be a number of

requirements related to contamination by hazardous and toxic

wastes, retrieving and disposing of orphan drums and barrels,

etc. There are specific activities that FEMA will fund, while

others are the responsibility of the United States

Environmental Protection Agency (USEPA). Please check with

FEMA Headquarters if hazardous and toxic waste other than

household hazardous waste (HHW) become an issue.

Types of Debris Removal and Disposal Contracts

Many local jurisdictions do not have the experience or

expertise required to define specific debris removal tasks, or to
35

recommend specific contract types based on the magnitude of

the debris clearance, removal, and disposal operation.

Contracting for labor and equipment may be necessary if the

magnitude of the emergency debris operation is beyond the

capabilities of local force account resources, State resources,

mutual aid agreements, and volunteer labor and equipment. If

the Governor waives contracting procedures because of the

emergency, that does not necessarily mean competition is

suspended; it means time can be compressed. Emergency

contracting may still require (or can use) competitive bidding.

Local communities should not enter into contracts that are

developed by the contractor without having those contracts

carefully reviewed by their legal staff. While most contractors

are very reputable, experience has shown there is a small

number that will attempt to take advantage of the confusion

surrounding a disaster.

While applicants may enter into any contracts they wish, and

FEMA is not a party to those contracts, they should be strongly

encouraged to work with FEMA to ensure that the costs set

forth in the contracts they are considering are eligible for

reimbursement. To facilitate assistance to applicants in this

matter, FEMA staff will be available to provide technical

assistance before contract execution to help ensure

compliance with the provisions of the Public Assistance

Program, as well as other applicable statutes and regulations.

This information can assist the applicant in the selection of

proper contract forms and the development of acceptable

scopes of work. Appendix F, Debris Contract Information for

Applicants, is a handout that can be provided to the States and

local applicants to assist in contracting.

Time and Material Contracts: To be eligible for FEMA

reimbursement, Time-and-Material contracts should be limited

to a maximum of 70 hours of actual emergency debris

clearance work and should be used only after all available

local, tribal and State government equipment has been

committed.

The 70 hours provides time for (1) moving the debris from the

roadway to the curbsides or rights-of-way to allow passage of
36

emergency vehicles, and (2) negotiating unit price and/or lump

sum contracts. If an applicant awards multiple time and

material contracts, those contracts should run concurrently, not

consecutively.

Time-and-Material contracts should clearly state that:

• The price for the equipment applies only when the

equipment is operating.

• The hourly rate includes the operator, fuel, maintenance

and repair.

• The community reserves the right to terminate the contract

at its convenience.

• The community does not guarantee a minimum number of

hours.

• The contract has either a dollar ceiling or a not-to-exceednumber-of-hours clause.

Time-and-Material contracts for debris clearing, hauling and/or

disposal should be terminated once the designated not-toexceed number of hours is reached. On occasion, Time-andMaterial contracts may be extended by FEMA for a short

period when absolutely necessary; for example, if there is a

short unavoidable delay in executing Unit Price contracts.

Such an extension should be in writing with a copy placed in

the Case Management File.

A Time and Material Contract:

• Is extremely flexible, not scope-dependent.

• Has a wide range of uses.

• Is suitable for emergency “hot spots” and early debris

rights-of-way clearance.

• Requires contractor oversight and direction as to what

work to perform.

• Requires documentation of actual hours worked by

equipment and operators.
37

• Requires competitive bids or negotiated reasonable hourly

rates for equipment and operators.

• Specifies equipment as generically as possible to

encourage competition.

• Requires full-time and trained contract monitors to

document actual equipment usage.

Unit Price Contract: The unit price contract uses construction

units (Cubic Yards, Tons, Each) and prices for these units to

develop line item costs and total contract cost. The unit price

contract should be used when the scope of work is difficult to

define and is based on estimated quantities.

A Unit Price Contract:

• Is flexible.

• Requires accurate account of actual quantities removed in

either cubic yards or tons.

• Ensures a wide range of competition because of simplicity

of contract.

• Has a low risk for the contractor.

• Requires dedicated contract monitors at the pickup site

and at the disposal site.

• Has possibility of contractor fraud if loading and dumping

operations are not closely monitored.

• Is complicated if segregation of debris is required.

• Requires all trucks to be accurately measured and

numbered.

• Requires all truckloads to be documented. For most

accurate accounting a pre-numbered load ticket should be

used. Load tickets are the verification of the estimated

quantity of debris in cubic yards or tons deposited at the

dumping site.

Lump Sum Contract: The lump sum contract should be used

only when the scope of work is clearly defined by the applicant
38

(not the contractor), and the areas of work can be specifically

quantified. This type of contract establishes a total contract

price by a one-item bid from the contractor. It is understood in

a lump sum contract that the price for the work is fixed unless

the scope of work changes; therefore, the bottom line of the

contract is not in question, as it is with the unit price contract.

The main disadvantage of the lump sum contract occurs if the

scope of work is not well defined. In that case, the quantity

estimate and the definition of the scope of work become the

responsibility of the contractor bidding the project. Experience

has shown that the contractor passes this burden back to the

government in the form of contingencies, which are

incorporated into the bid price.

The Lump Sum Contract:

• Should be used only when there is a clear, definable scope

of work that can be quantitatively measured by the

contractor and the applicant. (Be sure the contract includes

the quantity of debris that is being moved.)

• Provides an easy means of establishing the cost of the

work at the time of bid opening.

• Requires minimum labor for monitoring.

• Is easy to monitor, as the scope of work is well defined.

• May result in difficulty to quantify the amount of debris that

will be brought to the right-of-way for removal.

• Has a high probability of claims if debris estimates are

difficult to estimate and require speculation.

• Makes it easy to determine when a contractor has

completed all work.

• Shifts most of the risk to the contractor.

• Does not require quantities to be documented (as they are

in a unit price contract).
39

Debris Removal and Disposal Contract Monitoring

Debris removal and disposal operations require dedicated

applicant and FEMA personnel to monitor the activities of the

contractor.

Applicant Monitoring Responsibilities: The applicant should

employ full time, trained debris monitors to account for the

actual quantity of debris being hauled and disposed of under a

unit price contract. The applicant should ensure that there is

adequate supervision by qualified local monitors at all

temporary storage and reduction sites or landfill disposal sites.

These sites become the focal point for quantity verification for

payment under unit price contracts.

The applicant should establish inspection stations near the

entrance of the site if the contract unit of measurement is

cubic yards. Inspection stands should be built for the

inspection of loaded trucks. When the contract unit of

measurement is based on weight, provisions should be made

for weighing trucks as they enter the site.

Payment under a unit price contract is normally made on the

basis of load tickets. The recommended procedure for using

load tickets is as follows:

• Load tickets should be treated as accounting forms.

• A work site debris monitor should initiate a load ticket for

all contract trucks leaving a designated contract area.

• The work site debris monitors should retain one copy of

the form, which is returned to the operations office, and

two copies should be given to the truck driver after

completing the initial information.

• All contract trucks should have the contractor’s name or

initials, the truck number and the measured capacity of the

truck, as determined by a government representative,

clearly visible on both sides of the vehicle. Truck

measurements should be periodically verified.

• The disposal site debris monitor should estimate the

volume of debris and note arrival time and volume in cubic
40

yards on the load ticket. The truck driver should keep one

copy and the site monitor should keep the other. The

disposal site debris monitor’s copy should be returned to

the operations office to be matched against the work site

inspector’s copy for pay verification. The truck driver’s

copy is the basis of contract billings.

• All debris monitors should read and become familiar with

the technical provisions of the contract and should

conscientiously estimate each load hauled by the

contractor. Improper estimates can lead to large and

unnecessary government expenditures.

• If loads are not properly loaded or compacted, debris

monitors should reduce the rated volume of the truck

accordingly. Debris monitors should always be fair and

consistent in dealing with contractor personnel.

• A local government staff member should be designated as

the temporary storage and reduction site and/or disposal

site manager.

Applicant debris monitors should take the following actions to

ensure that all contractor operations comply with the contract:

• Monitor all contractor operations to include pick-up areas,

disposal areas and temporary and permanent disposal

sites.

• Measure debris piles to verify quantities at temporary sites.

• Report any illegal dumping.

• Meet with the contractor to reach an agreement as to when

temporary sites will be closed.

• Take aerial and/or ground photographs of temporary sites

after they have been cleaned.

If communities are unable to provide their own debris monitors

they may:

• Hire local engineering firms. (Registered professional

engineers are not required for monitoring activities.)
41

• Request FEMA /State staff assistance.

• Request assistance from Technical Assistance

Contractors.

• Request Mission Assignments to USACE for assistance.

FEMA Monitoring Responsibilities: FEMA has the authority

to monitor applicant’s contractor operations and may select

specific contractors for monitoring. The following are actions

that should be initiated by the PAO or Debris Advisor

immediately after a disaster:

• Two person monitoring teams are recommended with one

member being either a FEMA or TAC Debris Specialist and

the other a State employee.

• Debris monitoring should be done on a full-time basis if

possible. If not, then use a random monitoring process.

• Debris monitors should obtain and review copies of

proposed contracts – before final execution if possible.

• Debris monitors should observe all phases of the operation

to include loading sites, TDSR sites and final landfill sites.

Monitoring Tips: There are a number of techniques used by

debris contractors to inflate actual quantities of debris

removed and processed. Be on the lookout for:

• Inaccurate Truck Capacities. Trucks should be measured

before operations and load capacities documented by

truck number. Periodically, trucks should be pulled out of

operation and re-measured by the applicant.

• Trucks Not Fully Loaded. Do not accept the contention

that loads are higher in the middle and if leveled would fill

the truck. Check to see if that statement is valid.

• Trucks Lightly Loaded. Trucks arrive loaded with treetops

(or a treetop) with extensive voids in the load.

• Trucks Overloaded. Trucks cannot receive credit for more

than the measured capacity of the truck or trailer bed even
42

if material is above the sideboards. If a truck is measured

to carry 18 cubic yards it cannot receive credit for more

than 18 cubic yards. However, it can receive credit for less

if not fully loaded or lightly loaded as described above.

• Changing Truck Numbers. Normally, trucks are listed by

an assigned vehicle number and capacity. There have

been occasions where truck or trailer numbers have been

changed that have a smaller carrying capacity. This can be

detected by having the applicant periodically re-measure

the trucks or record actual State license numbers in

addition to having a description of the truck.

• Reduced Truck Capacity. There have been occasions

where trucks have had a heavy steel grating welded 2 to 3

feet above the bed after being measured, reducing the

capacity. This can be detected by periodically having the

applicant re-measure the truck bed.

• Wet Debris when Paid by Weight. There have been

occasions when contractors have added excessive water

to debris loads to increase the weight when being paid by

the ton. This can be detected during monitoring before the

load reaches the disposal site by excessive water dripping

from the truck bed, or by inspecting the truck bed

immediately after unloading.

• Multiple Counting of the Same Load. Trucks have been

reported driving through the disposal site without

unloading, then re-enter with the same load. This can be

detected by observing the time of departure and time of

arrival recorded on the driver’s load ticket. This may also

indicate problems with the applicant’s debris monitors at

the loading or unloading site.

• Picking-up Ineligible Debris. This is difficult to detect

unless debris monitors are watching the pick-up process.

Monitors should have a good understanding of eligible

debris (especially from private property) and any time limits

imposed on pick-up of specific types of debris. Examples

(from actual occurrences) include sweeping areas for

abandoned cars and white goods, cleaning up illegal dump
43

sites, removing cut trees from sub-divisions under

development, and removing/cutting trees from off the rightof-way in rural areas.

Reasonable Costs

The definition of “cost eligibility” states that a cost must be

reasonable and necessary. Additionally, the Office of

Management and Budget Circular A-87 requires Federal

agencies to pay only reasonable costs.

A reasonable cost is a cost that is both fair and equitable for

the type of work being performed. Many communities enter

into contracts that may not meet the definition of reasonable

cost. For example: charging $75/CY for hauling debris is

unreasonable when the going rate for similar work in adjacent

locations is $25/CY.

The reasonable cost requirement applies to all labor,

materials, equipment, and contract costs awarded for the

performance of eligible work.

The Debris Specialist should monitor debris removal and

disposal operations and take note of the following actions that

may have an effect on determining reasonable costs:

• Is debris being picked-up and hauled to a temporary

staging site?

• Is debris being segregated at the curb or at the temporary

site?

• Is debris being screened at the temporary sites to remove

dirt?

• What types of volume reduction are being used?

• What is the cost to haul to final disposal site(s)?

• How much are the disposal costs?

• Who is responsible for paying the tipping fees?

• Is there a temporary site restoration plan?
44

• Has a baseline investigation been conducted at the

temporary site?

• What is the current landfill capacity?

• What is the process for handling and disposing of

household hazardous wastes?

When determining reasonable costs, check for the following:

• Historical data (area and region) for similar work.

• Applicant data for previous similar work.

• Contract costs for similar work being done in the area.

• USACE costs in the area.

• State Office of Emergency Services data.

• FEMA cost codes for force account work.

• Consider the time frame of the operation (Costs may be

higher for clearing roads immediately after disaster; but

implementation of a bidding process for pickup and

disposal should reduce costs).

Do not arbitrarily establish “reasonable rates”. There must be

some basis for the reasonableness – records, rates being paid

by other nearby local entities, historical data, State rates for

similar work, examination of work being done, etc.

Determine the reasons for any cost variations on Project

Worksheets (PW). Be careful of writing PWs using the amount

stated in the contract. Check the contract and debris amounts

and work actually accomplished. Verify through monitoring or

withhold some funds until applicant can provide sufficient

documentation.

Tipping Fees: The Debris Specialist should always get a

breakdown of the landfill-tipping fee to determine the

components of that fee. It may include:

• Bond payoff for construction (Payoff of bonds for other

facilities is not eligible).
45

• Operation.

• Cover materials.

• Expansion.

• Monitoring.

Check with the State PAO to determine whether or not there is

a regulatory office that approves landfill-tipping fees. Make

sure that debris disposal costs do not include a duplication of

landfill capacity reduction costs or tipping fees. The charging

of chipping fees should be consistent, and not waived for

some and charged to others. Waived tipping fees are not

reimbursable.
46

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47

Section F

References

For additional information, the user should refer to the

following documents:

• The Federal Response Plan, 9230.1-PL, April 1999

• Emergency Response Team (ERT) Operations Manual,

9354.1-PR, June 1998

• Mission Assignments, Overview, 9344.1-VW, November

1998

• Debris Management Guide, FEMA 325, April 1999

• Public Assistance Policy Digest, FEMA 321, October 1998

• Demolition of Private and Public Facilities, Response and

Recovery Directorate Policy Number: 9523.4, November 9,

1999

• Public Assistance Guide, FEMA 322, October 1999

This document includes the Robert T. Stafford Disaster

Relief and Emergency Assistance Act, P.L. 93-288, as

amended; and 44 CFR Part 206, Disaster Assistance

(subparts G-L pertaining to the PA Program).

• 44 CFR Part 13, Uniform Administrative Requirements for

Grants and Cooperative Agreements to State and Local

Governments.

These documents are available in Regional Offices, and

generally in Disaster Field Offices. At DFOs, check with the

Public Assistance Officer.
48

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49

Index

A

Advanced Contract Initiative ..................................................... 11

Air Curtain Pit Burning ..............................................................22

Applicant Information Needs .....................................................14

Applicant Monitoring Responsibilities ........................................39

Authority ................................................................................... 1

C

Changing Truck Numbers .........................................................42

Construction and Demolition Materials ......................................23

Controlled Open Air Burning .....................................................21

D

Debris Advisor ........................................................................... 5

Debris Clearance, Removal and Disposal Strategy ....................17

Debris Composition for Hurricanes ............................................28

Debris Estimating Models .........................................................29

Debris Management Organization and Responsibilitie ................. 3

Debris Removal and Disposal Contract Monitoring ....................39

Debris Removal and Disposal Operations Plan ........................... 7

Debris Specialist ....................................................................... 6

Deputy PAO for Debris .............................................................. 4

Development of Debris Mission Assignments .............................10

Disaster Field Office (DFO) Attorney ........................................... 6

E

Eligibility of Curbside Pick-up ....................................................30

Emergency Response Activities Related to Hazardous ...............34

Estimating Aids – Buildings .......................................................26

Estimating Debris Quantities .....................................................25

F

Federal Response Plan ............................................................. 1

FEMA Monitoring Responsibilities .............................................41

FEMA Technical Assistance Contractors ..................................... 7

G

General .................................................................................... 9
50

Index (Cont’d)

H

Homeowner’s Insurance Coverage for Debris Removal .............33

I

Inaccurate Truck Capacities ......................................................41

L

Lump Sum Contract .................................................................37

M

Metals .....................................................................................23

Mission Assignments ................................................................. 9

Monitoring Mission Assignments ............................................... 11

Monitoring Tips ........................................................................41

Multiple Counting of the Same Load ..........................................42

O

Operations Section .................................................................... 2

P

Phase I: Emergency Debris Clearance Operations .....................17

Phase II: Debris Removal and Disposal Operations ...................17

Picking-up Ineligible Debris ......................................................42

Portable Air Curtain Burner .......................................................22

Public Assistance Coordinator (PAC) .......................................... 5

Public Assistance Debris Management Responsibiliti .................. 1

Public Assistance Group ............................................................ 2

Public Assistance Officer (PAO) ................................................. 4

Public Assistance Program Debris Issues ..................................25

Public Information Officer .......................................................... 6

R

Reasonable Costs ....................................................................43

Reduced Truck Capacity ...........................................................42

Reduction Rates ......................................................................28

References ..............................................................................47

Regional Environmental Officer .................................................. 7

Reminders ...............................................................................26
51

Index (Cont’d)

Remote Sensing ......................................................................29

Removal of Eligible Debris from Private Property .......................31

Rules of Thumb .......................................................................27

S

Scope of Work .........................................................................10

Site Location ............................................................................20

Site Ownership ........................................................................20

Site Size ..................................................................................20

Soil ..........................................................................................23

T

Temporary Debris Storage and Reduction (TDSR) Site ..............20

Time and Material Contracts .....................................................35

Timing .....................................................................................13

Tipping Fees ............................................................................44

Trucks Lightly Loaded ..............................................................41

Trucks Not Fully Loaded ...........................................................41

Trucks Overloaded ...................................................................41

Types of Debris Removal and Disposal Contracts ......................34

U

Unit Price Contract ...................................................................37

Use of Mission Assignments ...................................................... 9

V

Volume Reduction by Burning ...................................................21

Volume Reduction by Grinding and Chipping .............................22

Volume Reduction by Recycling ................................................22

Volume Reduction Methods ......................................................21

W

Wet Debris when Paid by Weight ..............................................42

Wood ......................................................................................23

Working with Applicants ............................................................13
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A-1

APPENDIX A

Public Assistance Debris Removal and Disposal

Operations Plan

FEMA-XXXX-DR-XX

Date

1. Preliminary Damage Assessment (Note: This section

may be used to summarize a plan for PDA debris

activities or summarize debris information from the

PDA.)

a. Identify Counties and Communities Affected.

b. Identify Location of Debris.

c. Estimate Quantity of Debris.

d. Determine Types (Mix) of Debris.

e. Estimate Amounts of Debris on Private Property, Public

Property and Rights-of-Way.

2. Public Information Strategy - General Public

(Development of process to keep public timely

informed of debris-related activities including the

following):

a. Collection Schedule.

b. Separation Requirements (Household Hazardous

Waste, Woody Debris, C&D, Metals, Appliances, etc.).

c. Extent of public property cleanup (Remove all eligible

debris up to property line).

The following is an example of the type of plan that should

be prepared in the Public Assistance Section to coordinate,

track, and document all debris-related activities (Sections

should be added or deleted as necessary)
A-2

d. Differentiate between eligible debris and normal

garbage pickup.

e. Location of local drop-off locations for debris by selfhelp and independent contractor.

f. Volunteer organizations offering to assist homeowners

with private property cleanup.

g. Normal garbage pickup schedules.

h. Illegal Dumping Penalties.

i. Procedures for Removal of Abandoned Vehicles.

3. Public Information Strategy – State and Local

a. Procedures for providing information on contracting.

b. Procedures for providing information on contract

monitoring.

c. Procedures for providing information on available

technical assistance regarding contracting.

d. Procedures for providing eligibility information.

4. Debris Removal Priorities

a. Rights-of-Way

b. Public Facilities

5. Roles and Responsibilities

a. Local governments decide if they will remove and

dispose of debris using either force account or

contract.

b. State government decides how it will support debris

removal and disposal operations using either State

assets, contracting out operations or requesting a

FEMA Mission Assignment.
A-3

c. FEMA prepares Mission Assignment to USACE based

on request from State to conduct debris removal and

disposal operations.

d. FEMA coordinates with BIA for requests for debris

removal from tribal lands, as necessary.

6. Final Debris Disposal Solution

a. What are the requirements for final disposal of debris?

i. Metals

ii. Vegetative

iii. Construction and Demolition Debris

iv. Soil

v. Household and Hazardous Waste

vi. Hazardous Waste

7. Environmental Issues and Considerations

a. Meet State and Local environmental Requirement for

Minimization and Storage

b. Hazardous Materials Disposal

c. Household Hazardous Waste Disposal

d. Air

e. Surface and Subsurface Water

f. Soil

g. Erosion

h. Noise

i. Consult with State Historic Preservation Officer

(SHPO) on Section 106 Historical Issues
A-4

8. Debris Operational Issues

a. Determine when operations will start

b. Determine where temporary storage and reduction

sites will be located.

• Public or Private Land

• Size Requirements

• Pre-existing Conditions

• Public Acceptability

• Site Ingress/Egress

• Distance to Permanent Sites

c. Determine which landfill sites, including ownership and

operation, will be used for final disposal.

d. Determine how separation will be handled.

e. Determine if volume reduction will be used for debris

going to privately owned landfills.

f. Determine if volume reduction will be used for debris

going to public owned landfills.

g. Determine which methods of volume reduction will be

used – burning, grinding, and recycling of metals.

h. Establish Debris Coordinating Committee. Participants

should include:

• USACE/ESF#3

• USEPA/ESF#10

• State PAO

• Appropriate State Agencies

• Other FEMA Representatives (Legal/

Congressional Media Affairs/Community Relations,

PIO, REO, etc.)
A-5

i. Rights of Entry for Private Property

j. Hold Harmless Agreements for Private Property

l. Traffic Patterns, Traffic Flow, Routes and Restrictions

m. Pickup Schedules

n. Hours of Operation

o. Condemnation and Demolition of Private Structures

(See Stafford Act Section 403)

p. Disposal Location and Policy for Independent

Contractors

q. Public Information Dissemination

r. Procedure for Recoupment of Insurance Proceeds

s. Debris Removal from Tribal Lands

9. Applicant Contract Operations

a. Review Contract Statements of Work (Copies attached,

Annex B (Note: Use appropriate Annexes as

necessary.)

b. Monitoring Contractor Operations (See Monitoring

Plan, Annex A)

c. Legal Review of Local Contracts

d. Environmental Review of Local Contracts

e. Contract Closeouts

10. USACE Debris Removal Process (If applicable)

a. Summary of Mission Assignment and Amendments

(See

Annex C)

b. Areas to be covered by USACE

c. Location of TDSR sites

d. Types of reduction being used
A-6

e. Schedule

f. Contacts

Debris Removal from Public Land - USACE

Action Responsible Participants

Identify Areas to be Cleared Local and State Officials

Communicate Priorities to FEMA State PAO

Mission Assignment to USACE FEMA and ESF #3

Develop and Award Contract USACE

Coordinate with Local Officials on

Specific Contract Schedules of

Execution

USACE, State and FEMA

Execute Contract and Monitor

Operations USACE and Contractor

Public Health and Safety Hazard must

be in accordance with local ordinances

and procedures determined by local

government

Local and State Officials

Communicate Priorities to FEMA Local Through State PAO

Mission Assignment to USACE FEMA

Establish Process for Recoupment of

Insurance Proceeds FEMA, State, and Local Authorities

Obtain Rights of Entry and Hold

Harmless Agreements

State and Local Government Forms

provided by USACE or FEMA

Verify property Ownership Local

Forward Executed ROE Forms to

USACE Local Through State PAO

Develop and Award Contract USACE

Photograph Property, Develop Group

Releases and prepare Contract

Modification (if needed)

USACE

Coordinate with Local Officials on

Specific Schedules of Execution USACE, State and FEMA

Execute Contract and Monitor Cleanup

Operations USACE and Contractor

Report Completion to FEMA USACE
A-7

11. Coordination Process

a. Establish Debris Coordination Committee

i. Members

ii. Meeting Schedule

b. Coordination between meetings

c. Documentation of coordination

12. Category A – Project Worksheet Process

ANNEXES:

A. Applicant Debris Contracts

B. FEMA Contract Monitoring Plan

C. USACE Debris Mission Assignments and Amendments

D. Other (As Required)
A-8

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B-1

APPENDIX B

PUBLIC ASSISTANCE DEBRIS REMOVAL AND

DISPOSAL OPERATIONS

FEMA-XXXX-DR-XX

STATUS REPORT

CURRENT SITUATION

The debris removal and disposal effort for disaster FEMAXXXX-DR-XX involves a major debris-laden area approximately ____miles wide by approximately ___ miles in length,

bounded by _____on the North, ____ on the South, ______on

the East and _____on the West. Additional concentrated

pockets of debris are located in isolated rural areas and county

roads.

Initial debris estimates indicate that there are approximately

____ cubic yards of debris in the affected area.

PRIORITIES

• Identify and secure Temporary Debris Storage and Reduction Sites.

• Dissemination of debris information and schedules to the

public and local governments.

• Develop a Contingency Plan for dealing with debris removal from private property.

ACTION ITEMS

1. State has requested Public Assistance (PA) to conduct

Preliminary Damage Assessments (PDA) for five additional

counties.

The following is an example Status Report that should be

prepared in the Public Assistance Section to coordinate,

track, and document all debris-related activities (Sections

should be added or deleted as necessary)
B-2

2. Some rural communities have started their own debris

removal and disposal operations without coordinating with

either State or FEMA. There is concern as to whether they

are meeting Federal environmental requirements. DEQ is

reviewing this situation.

3. Right of Entry and Hold Harmless forms being reviewed by

the FEMA.

4. The initial environmental and archaeological site survey for

the temporary debris-processing site will be conducted on

Thursday.

5. Public Information Officer from the USACE will attend all

Debris Coordinating meetings.

6. DEQ/EPA will develop a strategy for disseminating information to local communities for the special handling of

Freon. The USACE may have to institute a modification to

the current contract to address disposal of Freon from all

refrigeration units.

ACCOMPLISHMENTS

1. State requested USACE assistance in removing and

disposing debris on public property and public rights- ofway in all declared counties. Eleven counties declared to

date.

2. FEMA has tasked the USACE using a Mission Assignment

to institute contracting procedures to obtain a Prime Contractor to manage the debris removal and disposal mission.

 3. ESF#3 will be the single point for coordination of all debris

removal and disposal issues between FEMA and USACE.
C-1

APPENDIX C

DEBRIS COORDINATING COMMITTEE

In disaster operations, there are many entities that can become involved in debris operations. In a disaster where debris

is a significant component, a Debris Coordinating Committee

(DCC) is an excellent means of ensuring that all such entities

are acting in a coordinated manner. Additionally, it can act as a

clearinghouse for information, assist inestablishing priorities,

minimize duplication of effort, and provide a forum for resolving issues.

The Deputy PAO for Debris should organize and chair this

committee. Depending upon the type and size of the disaster,

the DCC should include representatives of any or all of the

following:

• US Army Corps of Engineers (and/or ESF #3)

• Environmental Protection Agency (and/or ESF #10)

• DFO Environmental Officer

• DFO Attorney’s Office

• DFO Media Affairs

• DFO Office of Inspector General

• DFO Congressional Liaison Office

• State PA Officer

• State Department of Solid Waste, Hazardous Waste, or

similar agency

• State Department of Natural Resources

• Debris Advisor

Additional entities may be appropriate. It will be the responsibility of the DPAO for Debris to determine those that are

necessary to ensure a coordinated approach to debris operations.
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D-1

APPENDIX D

PUBLIC ASSISTANCE PROGRAM

DEBRIS REMOVAL FACT SHEET FOR

LOCAL GOVERNMENTS

Under the Presidential disaster declaration for [STATE], the

Federal Emergency Management Agency (FEMA) may provide assistance to State and local governments for costs

associated with debris removal operations. (Debris removal

operations include collection, pick-up, hauling, and disposal at

a temporary site, segregation, reduction, and final disposal).

This document provides information on the eligibility of debris

removal operations for Public Assistance funding.

Questions: Questions regarding debris operations or the

Public Assistance Program in general should be referred to

[State Public Assistance Officer], at [telephone number].

General Work Eligibility: Determination of eligibility is a

FEMA responsibility. Removal and disposal of debris that is a

result of the disaster, and is on public property, is eligible for

Federal assistance. Public property includes roads, streets,

and publicly-owned facilities. Removal of debris from parks

and recreation areas is eligible when it affects public health

and safety, or limits the use of those facilities.

Debris Removal from Private Property: Disaster-related

debris may be removed from private property if it is preapproved by the Federal Disaster Recovery Manager, is a

public health and safety hazard, and if the work is performed

by an eligible applicant, such as a municipal or county government. The cost of debris removal by private individuals is not

eligible under the Public Assistance Program; however, within

a specific time period, a private property owner may move

disaster-related debris to the curbside for pick-up by an eligible applicant. That time period will be established by FEMA

in coordination with the State. (The cost of picking up reconstruction debris is not eligible for FEMA reimbursement).
D-2

Eligible Costs: If an applicant uses force-account personnel

and equipment, the cost of the equipment and overtime costs

for personnel are eligible for Federal funding. If an applicant

chooses to award a contract(s) for debris operations, the costs

of the contracts also are eligible for Federal funding. Applicants should exercise judicious care in contracting for

debris operations, since by law, FEMA is authorized only

to assist with reasonable costs. Reasonable costs are those

that are fair and equitable for the type of work performed. If

desired, FEMA staff will provide technical assistance on this

subject prior to contract award.

Direct Federal Assistance: If disaster-related debris removal

and disposal operations are beyond the capability of State and

local governments to perform or contract for the work, the

State may request direct Federal assistance. In such instances, FEMA will give to the U.S. Army Corps of Engineers a

mission assignment to prepare, execute, and monitor contracts for debris operations.

Use of Contractors: If an applicant decides to award contracts for debris removal, FEMA advises the following:

• Do not allow contractors to make eligibility determinations;

they have no authority to do so.

• Utilize pre-negotiated contracts if available.

• Consider using qualified local contractors because of their

familiarity with the area.

• Utilize formal competitive procedures when time permits. If

time does not permit use of normal competitive procedures, competitive bids still may be obtained using a

reduced time frame for submittal of bids.

• Request copies of references, licenses, and financial

records from unknown contractors.

• Document procedures used to obtain contractors.

• Do not accept contractor-provided contracts without close

review. FEMA can provide technical assistance on contracts and contract procedures.
D-3

FEMA does not recommend, pre-approve, or certify

any debris contractor.

FEMA does not certify or credential personnel other

than official employees and Technical Assistance

Contract personnel assigned to the disaster by FEMA.

Only FEMA has the authority to make eligibility determinations. (See Appendix F: Debris Contract Information.)

Types of Debris Contracts: There are three general types of

contracts that may be used for debris operations:

Time and Materials Contracts may be used for short periods of

time immediately after the disaster to mobilize contractors for

emergency removal efforts. They must have a dollar ceiling or

a not-to-exceed limit for hours (or both), and should be terminated immediately when this limit is reached. For FEMA

reimbursement, such contracts should be limited to 70

hours of actual work. The contract should state that (a) the

price for equipment applies only when equipment is operating,

(b) the hourly rate includes operator, fuel, maintenance, and

repair, (c) the community reserves the right to terminate the

contract at its convenience, and (d) the community does not

guarantee a minimum number of hours.

Unit Price Contracts are based on weights (tons) or volume

(cubic yards) of debris hauled, and should be used when the

scope-of-work is not well defined. They require close monitoring of pick-up, hauling, and dumping to ensure that quantities

are accurate. Unit price contracts may be complicated by the

need to segregate debris for disposal.

Lump Sum Contracts establish the total contract price using a

one-item bid from the contractor. They should be used only

when the scope of work is clearly defined, with areas of work

and quantities of material clearly identified. Lump-sum contracts can be defined in one of two ways: area method, where

the scope of work is based on a one-time clearance of a

specified area; and pass method, where the scope of work is

based on a certain number of passes through a specified area,

such as a given distance along a right-of-way.
D-4

Ineligible Contracts: FEMA will not provide funding for costplus-percentage of cost contracts, contracts contingent upon

receipt of State or Federal disaster assistance funding, or

contracts awarded to debarred contractors.

Contract Monitoring: The applicant should monitor the

contractor’s activities to ensure satisfactory performance.

Monitoring includes: verification that all debris picked up is a

direct result of the disaster; measuring and inspecting trucks

to ensure they are fully loaded; on-site inspection of pick-up

areas, debris traffic routes, temporary storage sites, and

disposal areas; verification that the contractor is working in its

assigned contract areas; verification that all debris reduction

and disposal sites have access control and security. FEMA can

provide assistance with monitoring if necessary. If an applicant

has insufficient staff to properly monitor debris contract operations, the cost of hiring of additional staff for monitoring (or

reasonable costs of contracting for monitoring) is eligible for

Federal funding.

Documentation: To ensure that processing of Federal funding

is done as quickly as possible, applicants should keep the

following information: debris estimates, procurement information (bid requests, bid tabulations, etc.), contracts, invoices,

and monitoring information (load tickets, scale records). If an

applicant does debris removal, the payroll and equipment

hours must be kept.

Technical Assistance: FEMA and the State may provide

technical assistance with planning, carrying out, and monitoring of debris removal operations. Applicants in need of technical assistance should contact the State Public Assistance

Officer at the number given in the first paragraph.
E-1

APPENDIX E

SAMPLE RIGHT-OF-ENTRY PERMIT

(INCLUDES HOLD HARMLESS AND

INSURANCE CLAUSES)

Right of Entry Permit Permit No. _____________

Property Address/Description

City Name (Owner or Tenant)

County Date

Right of Entry

I certify that I am the owner, or an owner’s authorized agent, of

the property described above. I grant, freely and without

coercion, the right of access and entry to said property to the

(eligible applicant), its agents, contractors, and subcontractors,

for the purpose of demolishing, removing and/or clearing any

or all storm-generated debris of whatever nature from the

above-described property.

Hold Harmless

I understand that this permit is not an obligation upon the

government to perform debris removal. I agree to hold harmless the United States Government, the Federal Emergency

Management Agency (FEMA), the State of (____________),

and any of their agencies, agents, contractors, and subcontractors, for damages of any type whatsoever, either to the

above-described property or to persons situated thereon. I

release, discharge, and waive any action, either legal or

equitable, that might arise by reason of any action of the

above entities, while removing storm-generated debris from

the property. I will mark any sewer lines, septic tanks, water

lines, and utilities located on the described property.
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Duplication of Benefits

Most homeowner’s insurance policies have coverage to pay

for removal of storm-generated debris. I understand that

Federal law (42 United States Code 5155 et seq.) requires me

to reimburse (eligible applicant) the cost of removing the

storm-generated debris to the extent covered in my insurance

policy. I also understand that I must provide a copy of the

proof/statement of loss from my insurance company to (eligible applicant). If I have received payment, or when I receive

payment, for debris removal from my insurance company, or

any other source, I agree to notify and send payment and

proof/statement of loss to (eligible applicant). I understand that

all disaster related funding, including that for debris removal

from private property, is subject to audit.

Sworn and attested: Witnessed:

All owners must sign below.

Print Name_______________ Print Name ________________

Signature _______________ Signature _________________

Name of Insurance Company:__________________________

Policy Number: _____________________________________

Please do not remove the following items:________________

____________________________________________________

____________________________________________________

____________________________________________________

____________________________________________________
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APPENDIX F

DEBRIS CONTRACT INFORMATION

FOR APPLICANTS

Many of the problems that affect Federal reimbursement for

debris removal, reduction and disposal occur as a result of

improper contracting procedures, incomplete or inappropriate

contracts, and/or inadequate monitoring of contract operations. FEMA and/or the State can provide technical assistance

on the preparation and review of debris contracts and contracting. The following information is provided to assist you in

developing and monitoring debris related contracts.

1. FEMA does not certify, credential, or recommend debris

contractors.

2. No debris contractor has the authority to make eligibility

determinations.

3. You need to make sure that you are familiar with FEMA

eligibility, and not allow the contractor to make eligibility

determinations. Eligibility information is available in numerous FEMA documents including the Public Assistance

Guide (FEMA 322), Public Assistance Applicant Handbook

(FEMA 323), and the Public Assistance Debris Management Guide (FEMA 325) It also is available on the FEMA

Website, www.fema.gov. If you have eligibility questions,

call the State or FEMA.

4. Make sure the debris contract is one that contains a clear

and definitive scope of work, monitoring requirements, and

specific language that is required for each debris related

task.

5. Do not sign a contract provided by a contractor until it has

been thoroughly reviewed by your legal representative.

6. Use competitive bidding unless impossible to do otherwise.

Many applicants have received competitive bids in very

short time frames.
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7. You are responsible for payment of services contracted,

regardless of whether or not such services are eligible for

reimbursement by FEMA. Remember that FEMA is not a

party to a debris-related contract entered into by you and a

contractor.

8. Be aware of the limitations of time and material contracts.

It is FEMA policy to reimburse for only the first 70 hours of

a time and materials contract. Some contracts contain time

and material clauses for certain types of work, and costs of

such work may not be fully reimbursable.

9. All types of contracts must contain a requirement that

records be kept that shows the amount of debris picked

up, hauled, and/or reduced to determine reasonable costs.

10. Every contract should contain a “Termination for Convenience” clause. It is recommended that your attorney

prepare this clause. An example of such a clause is as

follows:

“This contract may be terminated at any time for the

convenience of (the contracting entity). If this clause is

executed, (the contracting entity) agrees to pay the contractor for all work completed through the termination date,

as well as any demobilization costs that were a part of the

original contract.”

11. The contract should contain a cap on the cost. When that

cap is reached, a review of work accomplished and work

completed should be conducted to determine work remaining. If necessary, the contract can then be modified to

reflect more accurate information.

12. Be sure the contract has a reasonable period of performance for the work to be done. Monitor the work effort to

ensure compliance with the schedule for completion.

13. Many services offered for a fee by contractors (training in

preparing Project Worksheets, documentation requirements, eligibility information, etc.) may be available free

from FEMA or the State. Be sure you are aware of those

services.
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14. Make sure costs are reasonable. FEMA pays only reasonable costs.

15. In some instances, it may be necessary to use temporary

debris storage and/or reduction sites. Such sites are

expensive to develop, manage and restore. Don’t sign a

contract for the development and management of such

sites unless you know it is necessary. Call the State for

assistance.

16. You, not the contractor, are responsible for monitoring and

certifying debris operations. Be sure you have sufficient

staff deployed for that task. If you do not have enough

staff, hiring additional staff is eligible for funding according

to the disaster cost share (usually 75% Federal, 25% nonFederal); however, those costs must be reasonable. It is

not necessary to use registered professional engineers for

monitoring. Many applicants find that construction inspectors are very appropriate.
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